An Emergency and Risk Management - FEMA



Risk and Emergency Management

Case Studies Textbook

Development Project

Prepared By:

George Haddow and Damon Coppola

Bullock & Haddow LLC

315 Boyd Ave.

Takoma Park, MD 20912

301-270-5554

The purpose of this effort is to develop an Emergency and Risk Management Case Studies Textbook designed to provide a resource for practitioners and students in the crisis, disaster, and risk management disciplines that displays various best practices, lessons learned, and success stories, through in-depth case studies. The result of this effort will be the authorship of a college-level crisis, disaster, and risk management textbook containing numerous real-world case studies of disaster preparedness, mitigation, response, and recovery actions.

The textbook will be developed in electronic format to support upper division undergraduate college and graduate-level emergency management classes within an emergency management major or certificate program to students who may someday enter an emergency management related profession.

The planned book will include the following ten chapters:

Chapter 1. Introduction to Crisis, Disaster, and Risk Management Concepts

Chapter 2. Preparedness

Chapter 3. Mitigation

Chapter 4. Response

Chapter 5. Recovery

Chapter 6. Communications

Chapter 7. Statutory Authority

Chapter 8. Business Continuity Planning

Chapter 9: International Disaster Management

Chapter 10: Future Trends and Issues

Text chapters will support a minimum of ten three-hour blocks of instruction, unless otherwise agreed upon by the contractor and FEMA. Information derived from published sources shall be properly cited within textbook chapters, either within the text or by utilizing footnotes. Numerous information and data sources will be consulted in drafting the case studies including but not limited to:

* Reports by Federal, State and local government organizations

* News reports developed by the media

* Studies and reports developed by academic institutions

* First hand accounts by participants and witnesses

* Official testimony to government bodies

* Previously published emergency and risk management textbooks

* Interviews with available participants and officials

* Reports prepared by voluntary agencies

* Reports and information developed by business community sources

* Data collected by public and private sector sources

Each Chapter will include:

• Chapter Outline - Bulleted-format outline detailing major topics to be discussed in each chapter

• Chapter Introduction - Introduction of topics and concepts to be discussed in each chapter. Each chapter will explore a disaster management concept through the medium of one or more case studies

• Full Instructional Text - Generally, this will consist of one or more case studies

• Sidebars - Interesting commentary and important concepts that are provided in the outer page margins to expand upon the case studies and other instructional material

• Discussion Questions - Questions that challenge readers to consider how the events and actions described in the cases would apply in their local context

• Illustrations - Photographs, charts, graphs, diagrams, and other material that adds visual enhancement to materials provided

• Information Resources and Website Links - Additional sources of information available in the public, private, and non-profit sectors, both conventional and on-line

• Glossary of Terms and Acronyms

• Suggested Out-of-Class Exercises - Additional projects, to be assigned at the discretion of the instructor, that provide students with additional practical experience with the material discussed in the comprehensive chapter material

As of June 7, 2005, Chapters 1 through 5 have been completed in draft from and submitted fro review to FEMA. Presented in the following sections are an outline of the topics and concepts discussed and a list of the case studies included in each of these chapters.

Chapter 1: Introduction to Crisis, Disaster, and Risk Management Concepts

The purpose of this chapter is to introduce the reader to current and historical crisis, disaster and risk management concepts, to define the four phases of emergency management, and to highlight issues concerning communications, business continuity planning and international disaster programs. Also included in this chapter is a discussion of the attributes of a successful emergency management system that will be illustrated in the case studies presented in this book.

This chapter includes the following sections:

• Review of Historical Trends in Emergency Management

• Four Phases of Emergency Management

• Communications

• Business Continuity Planning and Emergency Management

• International Disaster Programs

• Emergency Management and the New Terrorism Threat

• Attributes of Successful Emergency Management Programs and Functions

• Brief Descriptions of Case Studies

Chapter 2: Preparedness

1. Introduction of topics and concepts to be discussed in the chapter

1. Preparedness Cycle

2. Preparedness Programs

3. Education and Training Programs

4. Community Involvement

2. Case Studies:

1. Washington State Emergency Management Division – Comprehensive Public Disaster Preparedness Campaign

2. TsunamiReady – An Effective Tsunami Preparedness Program

3. The Emergency Management Institute – The Federal Role in Emergency Management Education in the United States

Chapter 3: Mitigation

1. Introduction of topics and concepts to be discussed in this chapter.

a. Tools for Mitigation

i. Hazard Identification and Mapping

ii. Design and Construction Applications

iii. Land Use Planning

iv. Financial Incentives

v. Insurance

vi. Structural Controls

b. Impediments to Mitigation

2. Case Studies

a. Deerfield Beach, Florida: A Project Impact Community

b. Avalanche Mitigation in the Western United States

c. Tornado Safe Rooms

Chapter 4: Response

1. Introduction of topics and concepts to be discussed in this chapter.

a. Local Response

b. State Response

c. Volunteer Group Response

d. Federal Response

e. Incident Command System

2. Case Studies

a. 2003 California Wildfire Response

b. Space Shuttle Columbia Disaster

c. Pentagon Attack on September 11, 2001

Chapter 5: Recovery

1. Introduction of topics and concepts to be discussed in the chapter.

a. Federal individual community and business assistance programs

b. State and local assistance programs

c. Roles and responsibilities

d. Volunteer groups

e. Resources

f. Role of business sector

g. Coordination

h. Customer service

i. Insurance

2. Case studies

a. Federal Government Recovery Efforts Following the 1993 Midwest Floods

b. Housing Reconstruction after the 1994 Northridge Earthquake

c. September 11 Philanthropic Recovery Efforts

Presented in the following sections are the proposed topics and concepts to be discussed in Chapters 6-10 and lists of potential case studies to be considered for inclusion in each chapter.

Chapter 6: Communications

3. Introduction of topics and concepts to be discussed in the chapter.

a. Leadership commitment

b. Customer Focus

c. Inclusion of communications in planning and operations

d. Media partnership

e. Information collection and dissemination

f. Accurate and timely information

g. Crisis communications

h. Preparedness Communications

i. Tools

4. Case studies to be examined of which 3-5 will be included:

a. 2001 Anthrax Attacks

b. Northridge Earthquake

c. Hurricane Floyd

d. September 11th Terrorist Attacks – National Focus

e. Campaign

f. Washington, DC Sniper Attacks

g. Homeland Security Advisory System (HSAS)

Chapter 7: Statutory Authority

5. Introduction of topics and concepts to be discussed in the chapter.

a. Why statutory is important

b. Budget authority

c. Program eligibility

d. Focus of authority

e. Roles and responsibility

6. Case studies to be examined of which 3-5 will be included:

a. Civil Defense Act

b. Homeland Security Act

c. Flood Insurance Act

d. Disaster Mitigation Act

e. Civil Defense Act

f. NEHRP

g. Rhode Island club fire

Chapter 8 Business Continuity Planning

7. Introduction of topics and concepts to be discussed in the chapter.

a. Business continuity planning elements and definitions

b. Business impact analysis

c. Establishing a business continuity planning capability

d. Working with public sector emergency managers

8. Case studies to be examined of which 3-5 will be included:

a. Marsh Consulting

b. American Express

c. Marriott Hotels

d. Global Partnership for Preparedness Small Business Preparedness Campaign

e. Fidelity Investments

Chapter 9: International Disaster Management

9. Introduction of topics and concepts to be discussed in the chapter.

a. Statutory and budget authority

b. Role of NGOs

c. Role of international financial institutions

d. Donor nation support

e. Leadership issues

f. Agency responsibilities

g. Tools, technology and staffing

10. Case studies to be examined of which 3-5 will be included:

a. 2001 Gujarat Earthquake

b. PAHO Preparedness Programs

c. USAID OFDA Disaster Response Mechanism

d. Hurricane Mitch in Honduras

e. Hurricane Mitch in Guatemala

f. Hurricane Georges in the Dominican Republic

g. MEER Project (Turkey)

Chapter 10: Future Trends and Issues

11. Continuing evolution of emergency management in the United States

a. Department of Homeland Security

i. NRP

ii. NIMS

iii. Statutory authorities

iv. Budget issues

v. Interdiction as the primary focus

b. FEMA

i. Resources

ii. Staffing

iii. Programs

iv. Role in Federal actions

v. Relationship with State and local government and emergency managers

c. Other Federal agencies

i. HHS

ii. EPA

iii. DOJ

iv. USDA

v. DOD

d. State and local emergency management

i. Evolving role in state and local government

ii. Education and training

iii. Staffing and resources

e. Role of the business sector

i. BCP evolution

ii. Partnering with government

iii. Education and training

iv. Certification

v. Expanding role inside the corporate world

12. Continuing evolution of emergency management internationally

a. Role of international financial institutions

i. Disaster relief

ii. Capacity building

iii. Shift in focus to mitigation

iv. Reconfiguring development plans

b. Government agencies

i. Statutory Authority

ii. Budget authority

iii. Technology and tools

iv. Staffing

v. Education and training

vi. Resources

vii. Coordination within the government

c. NGOs

i. Shift of focus to mitigation

ii. Resources

iii. Coordination with government

iv. Education and training

d. Role of US Government and other donor nations

i. Mitigation

ii. Resources

iii. Incorporation in development assistance

iv. Relief assistance

13. Future Considerations

a. Community based programs

b. Public safety position

c. FEMA’s role

d. Understanding the new terrorism threats

e. Consolidating business continuity and recovery planning in the corporate world

f. Disaster mitigation institutionalized in international development planning

g. Organizational capacity building in emergency management operations in developing countries

Presented in the following section is a Case Study from Chapter 2 as an example of the case studies to be included in the book:

Case Study 2.1: TsunamiReady – An Effective Tsunami Preparedness Program

The Tsunami Hazard

A tsunami (pronounced “soo-nah-mee”) is a series of waves generated by an undersea disturbance such as an earthquake. The term tsunami is Japanese in origin, represented by two characters: "tsu" (harbor) and "nami" (wave). Tsunamis are often referred to, incorrectly, as "tidal waves." In truth, tides result from the gravitational influences of the moon, sun, and planets, a phenomenon that has absolutely nothing to do with the generation of tsunamis (although the ultimate height of a tsunami striking a coastal area is determined by the tide level at the time of impact.)

There are many events that result in the generation of a tsunami, but earthquakes are the most prevalent.  Other forces that generate the great waves include landslides, volcanic eruptions, explosions, and though extremely rare, the impact of extra-terrestrial objects, such as meteorites.

Tsunamis are generated when a large area of water is displaced, either by a shift in the sea floor as would occur following an earthquake, or by the introduction of mass, as described in the other generative forms listed above. Waves are formed as the displaced water mass attempts to regain its equilibrium.  It is important to note that not all earthquakes generate tsunamis; to do so, earthquakes must occur underneath or near the ocean, be large in magnitude (studies have indicated a minimum 6.9 on the Richter Scale), and create movements in the sea floor. While all oceanic regions of the world can experience tsunamis, the countries lying in the Pacific Rim region face a much greater frequency of large, destructive tsunamis because of the presence of numerous large earthquakes in the seismically active ‘Ring of Fire’.

From the area of the disturbance, the resulting waves that are generated will travel outward in all directions, much like the ripples caused by a rock thrown into standing water. The time between wave crests can range from as little as 5 to as many as 90 minutes, and the wave speed in the open ocean will average a staggering 450 to 600 miles per hour.

Tsunamis reaching heights of more than 100 feet have been recorded. In the open ocean, tsunamis are virtually undetectable to most ships in their path. As the waves approach the shallow coastal waters, they appear normal but their speed decreases significantly. The compression of the wave resulting from the decrease in ocean depth causes the wave to rise in height and crash onto land – often with great destruction, injuries and death as the result. (NTHMP, 2003)

Tim Folger, in his article “Waves of Destruction”, described the generation of tsunamis. He wrote, "As the tsunami wave reaches the shallower water above a continental shelf, friction with the shelf slows the front of the wave. As the tsunami approaches shore, the trailing waves pile onto the waves in front of them, like a rug crumpled against a wall creating a wave that may rise up to 30 feet before hitting the shore.  Although greatly slowed, a tsunami still bursts onto land at speeds of around 35 miles per hour, with enough momentum to flatten buildings and trees and to carry ships miles inland." (Folger, 1994)

The areas facing the greatest risk from the tsunami hazard are those populated centers that lie within one mile of the coastline and rise less than 50 feet above sea level. It is in these areas that public education and planning for tsunamis has been focused. Misinformation about tsunamis can be deadly, as has been exhibited when people have fled an initial tsunami wave of a series, only to be killed upon returning too soon by successive waves that followed. Strange phenomena that precede a tsunami, such as the ocean receding for 100s of feet exposing the ocean floor, have resulted in the death of misinformed citizens who ventured out to explore, only to be drowned in a sudden return of water height.

The following list provides a small sample of the range of tsunami experiences that have occurred within the United States and Canada:

▪ In 1964, an Alaskan earthquake generated a tsunami with waves between 10 and 20 feet high along parts of the California, Oregon, and Washington coasts. This tsunami caused more than $84 million in damage in Alaska and a total of 123 fatalities.

▪ Although tsunamis are rare along the Atlantic coastline, a severe earthquake on November 18, 1929, in the Grand Banks of Newfoundland generated a tsunami that caused considerable damage and loss of life at Placentia Bay, Newfoundland.

▪ In 1946, a tsunami with waves of 20 to 32 feet crashed into Hilo, Hawaii, flooding the downtown area and killing 159 people.

Most deaths during a tsunami are a result of drowning. Other risks associated with the tsunami hazard include flooding, polluted water supplies, destruction of crops, business interruption, loss of infrastructure (roads, electrical lines, etc.), and damaged gas lines. Since 1945, more people have been killed as a result of tsunamis than as a direct result of an earthquake’s ground shaking.

Presently, the National Oceanic &Atmospheric Administration (NOAA) participates in the Tsunami Warning System, operating two Tsunami Warning Centers. The Alaska/West Coast Tsunami Warning Center (ATWC) in Palmer, Alaska, serves as the regional Tsunami Warning Center for Alaska, British Columbia, Washington, Oregon, and California. The Pacific Tsunami Warning Center (PTWC) in Ewa Beach, Hawaii, serves as the regional Tsunami Warning Center for Hawaii and as a national/international warning center for tsunamis that pose a Pacific-wide threat. (NTHMP, 2003)

An important part of the effort to reduce the impacts of tsunamis in these high-risk areas has been public education and community preparedness. Early efforts included the identification and marking of public evacuation routes, teaching supplies provided to schools, and literature distributed to the population at large. However, a more comprehensive program was needed, and the NOAA National Weather Service (NWS) developed the TsunamiReady program to address this need.

The TsunamiReady Program

TsunamiReady is an initiative that promotes tsunami hazard preparedness as an active collaboration among Federal, state and local emergency management agencies, the public, and the NWS tsunami warning system. This collaboration functions for the purpose of supporting better and more consistent tsunami awareness and mitigation efforts among communities at risk. Through the TsunamiReady program, NOAA’s National Weather Service gives communities the skills and education needed to survive a tsunami before, during and after the event. TsunamiReady was designed to help community leaders and emergency managers strengthen their local tsunami operations. (NOAA, N/D)

The TsunamiReady program is based on the NWS StormReady model (which can be viewed by accessing ). The primary goal of TsunamiReady is the improvement of public safety during tsunami emergencies. As stated above, TsunamiReady is designed for those coastal communities that are at known risk of the tsunami hazard (tsunami hazard risk maps can be seen by accessing ).

Traditionally, tsunami hazard planning along the U.S. West Coast and Alaska has been widely neglected because of the statistically-low incidence of tsunamis. As result of that perceived ‘rarity’, many individuals and communities have not worked to become as "tsunami-aware" as they could and should be. Among those communities that are considered to be prepared, that level of exhibited preparedness varies significantly (NWS, N/D).

However, as is true with the earthquakes and other rare events that generate tsunamis, avoidable casualties and property damage will only continue to rise unless these at-risk communities become better prepared for tsunamis. As previously mentioned, readiness involves two key components: awareness and mitigation. Awareness involves educating key decision makers, emergency managers, and the public about the nature (physical processes) and threat (frequency of occurrence, impact) of the tsunami hazard, while mitigation involves taking steps before the tsunami occurs to lessen the impact (loss of life and property) of that event when it does occur. Like is true with earthquakes, there is no question tsunamis will strike again.

The National Weather Service (NWS) TsunamiReady program was designed to meet both of the recognized elements of a useful readiness effort: it is designed to educate local emergency management officials and their public, and to promote a well-designed tsunami emergency response plan for each community.

Program Objectives

TsunamiReady promotes tsunami hazard readiness as an active collaboration among Federal, state and local emergency management agencies, the public, and the NWS tsunami warning system. This collaboration supports better and more consistent tsunami awareness and mitigation efforts among communities at risk. The main goal is improvement of public safety during tsunami emergencies. To meet this goal, the following objectives need to be met by the community:

• Create minimum standard guidelines for a community to follow for adequate tsunami readiness

• Encourage consistency in educational materials and response among communities and states

• Recognize communities that have adopted TsunamiReady guidelines

• Increase public awareness and understanding of the tsunami hazard

• Improve community pre-planning for tsunami disasters

Program Methodology

The processes and guidelines used in the TsunamiReady program were modeled to resemble those of the National Weather Service “StormReady” program. TsunamiReady established minimum guidelines for a community to be awarded the TsunamiReady recognition, thus promoting minimum standards based upon expert knowledge rather than subjective considerations. Communities that accept the challenge to become TsunamiReady, and are deemed to have met these requirements set by the NWS TsunamiReady program, are designated as “TsunamiReady Communities.” Guidelines to achieve TsunamiReady recognition are given in the following table, and discussed in detail in the pages immediately following. Four community categories (based upon the population of the community, and provided in the table’s heading) are used to measure tsunami readiness.

Note the Guideline 3 has been skipped as it refers exclusively to the StormReady program, which shares these guidelines with the TsunamiReady program. This is a key factor to consider, as it ensures by default that all communities that are StormReady will also be TsunamiReady (as of 2002). As such, all communities being certified for TsunamiReady also must pass all StormReady criteria. StormReady requires access to local weather monitoring equipment (Guideline 3) and some further administrative requirements (Guideline 6). Other than that, the requirements are identical.

|Guidelines |Population |

| |< 2,500 |2,500 - |15,000 - |>40,000 |

| | |14,999 |40,000 | |

|1: Communications and Coordination | | | | |

|24 hr Warning Point (WP) |X |X |X |X |

|Emergency Operations Center | |X |X |X |

|2: Tsunami Warning Reception | | | | |

|Number of ways for EOC/WP to receive NWS tsunami messages (If|3 |4 |4 |4 |

|in range, one must be NWR with tone-alert, NWR-SAME is | | | | |

|preferred) | | | | |

|4: Warning Dissemination | | | | |

|Number of ways for EOC/WP to disseminate warnings to public |1 |2 |3 |4 |

|NWR tone-alert receivers in public facilities (where |X |X |X |X |

|available) | | | | |

|For county/borough warning points, county/borough |X |X |X |X |

|communication network ensuring information flow between | | | | |

|communities | | | | |

|5: Community Preparedness | | | | |

|Number of annual tsunami awareness programs |1 |2 |3 |4 |

|Designate/establish tsunami shelter/area in safe zone |X |X |X |X |

|Designate tsunami evacuation areas and evacuation routes, and|X |X |X |X |

|install evacuation route signs | | | | |

|Provide written, locality specific, tsunami hazard response |X |X |X |X |

|material to public. | | | | |

|Schools: encourage tsunami hazard curriculum, practice |X |X |X |X |

|evacuations, and provide safety material to staff and | | | | |

|students | | | | |

|6: Administrative | | | | |

|Develop formal tsunami hazard operations plan |X |X |X |X |

|Yearly meeting/discussion by emergency manager with NWS |X |X |X |X |

|Visits by NWS official to community at least every other year|X |X |X |X |

Guideline 1: Communications and Coordination Center

It is well known that key to any effective hazards management program is effective communication. This could not be truer when considering tsunami-related emergencies, since the arrival of the giant waves can occur within minutes of the initial precipitating event. These so-called "short-fused" events, therefore, require an immediate, but careful, systematic and appropriate response. To ensure such a proper response, TsunamiReady requires that communities establish the following:

1. 24-Hour Warning Point. It is the NWS, not the community, which determines a Tsunami threat exists. Therefore, in order to receive recognition under the TsunamiReady Program, an applying agency needs to establish a 24-hour warning point (WP) that can receive NWS tsunami information in addition to providing local reports and advice to constituents. Typically, the functions of this type of facility are merely incorporated into the existing daily operation of a law enforcement or fire department dispatching (Emergency Communications Center (ECC)) point.

For cities or towns without a local dispatching point, a county agency could act in that capacity for them. In Alaska, where there may be communities that have populations of less than 2,500 residents and no county agency to act as a 24-hour warning point, the community is required to designate responsible members of the community who are able to receive warnings 24 hours per day, and who have the authority to activate local warning systems. Specifically, the warning point is required to have:

• 24-hour operations.

• Warning reception capability.

• Warning dissemination capability.

• Ability and authority to activate local warning system(s).

2. Emergency Operations Center. Agencies serving jurisdictions larger than 2,500 people are required to have the ability to activate an emergency operations center (EOC). It must be staffed during tsunami events to execute the warning point's tsunami warning functions. The following list summarizes the tsunami-related roles required of the EOC:

• Activate, based on predetermined guidelines related to NWS tsunami information and/or tsunami events.

• Staff with emergency management director or designee.

• Establish warning reception/dissemination capabilities equal to or better than the warning point.

• Maintain the ability to communicate with adjacent EOCs/Warning Points.

• Maintain the ability to communicate with local NWS office or Tsunami Warning Center.

Guideline 2: Tsunami Warning Reception

Warning points and EOCs each need multiple ways to receive NWS tsunami warnings. TsunamiReady guidelines to receive NWS warnings in an EOC/WP require a combination of the following, based on population:

• NOAA Weather Radio (NWR) receiver with tone alert. Specific Area Message Encoding (SAME) is preferred. Required for recognition only if within range of transmitter.

• NOAA Weather Wire drop: Satellite downlink data feed from NWS.

• Emergency Managers Weather Information Network (EMWIN) receiver: Satellite feed and/or VHF radio transmission of NWS products.

• Statewide Telecommunications System: Automatic relay of NWS products on statewide emergency management or law enforcement system

• Statewide warning fan-out system: State authorized system of passing message throughout warning area

• NOAA Weather Wire via Internet NOAAport Lite: Provides alarmed warning messages through a dedicated Internet connection

• Direct link to NWS office: e.g. amateur or VHF radio

• E-mail from Tsunami Warning Center: Direct e-mail from Warning Center to emergency manager

• Pager message from Tsunami Warning Center: Page issued from Warning Center directly to EOC/WP

• Radio/TV via Emergency Alert System: Local Radio/TV or cable TV

• US Coast Guard broadcasts: WP/EOC monitoring of USCG marine channels

• National Warning System (NAWAS) drop: FEMA-controlled civil defense hotline

Guideline 4: Warning Dissemination

1. Upon receipt of NWS warnings or other reliable information suggesting a tsunami is imminent, local emergency officials must be able to communicate this threat information with as much of the population as possible. This is fundamental to making the preparedness program effective. As such, receiving TsunamiReady recognition requires that communities have one or more of the following means of ensuring timely warning dissemination to their citizens (based upon population, as described in the table above):

• A community program that subsidizes the purchase of NWR. (NWR receiver with tone alert. SAME is preferred. Required for recognition only if within range of transmitter.)

• Outdoor warning sirens.

• Television audio/video overrides.

• Other locally-controlled methods, e.g. local broadcast system or emergency vehicles.

• Phone messaging (dial-down) systems.

2. It is required that at least one NWR, equipped with a tone alert receiver, be located in each critical public access and government-owned building, and must include 24 hour warning point, EOC, School Superintendent office or equivalent. Critical public access buildings are defined by each community's tsunami warning plan. Locations that are recommended for inclusion by the NWS include: all schools, public libraries, hospitals, fairgrounds, parks and recreational areas, public utilities, sports arenas, Departments of Transportation, and designated shelter areas. (SAME is preferred. This is required for recognition only if the community exists within range of a transmitter.)

3. Counties/Boroughs only: a county/borough-wide communications network ensuring the flow of information among all cities and towns within those administrative borders. This would include provision of a warning point for the smaller towns, and fanning out of the message as required by state policy.

Guideline 5: Community Preparedness

Public education is vital in preparing citizens to respond properly to tsunami threats. An educated public is more likely to take the steps required to receive tsunami warnings, recognize potentially threatening tsunami events when they exist, and respond appropriately to those events. Therefore, communities that are seeking recognition in the TsunamiReady Program must be able to:

• Conduct or sponsor tsunami awareness programs in schools, hospitals, fairs, workshops, and community meetings (the actual number of talks that must be given each year is based upon the community’s population).

• Define tsunami evacuation areas and evacuation routes, and install evacuation route signs.

• Designate a tsunami shelter/area outside the hazard zone.

• Provide written tsunami hazard information to the populace, including:

o Hazard zone maps

o Evacuation routes

o Basic tsunami information

These instructions can be distributed through mailings (utility bills, for example), within phone books, and posted at common meeting points located throughout the community, such as libraries, supermarkets, and public buildings.

• Local schools must meet the following guidelines:

o Encourage the inclusion of tsunami information in primary and secondary school curriculums. NWS will help identify curriculum support material.

o Provide an opportunity biennially for a tsunami awareness presentation.

o Schools within the defined hazard zone must have tsunami evacuation drills at least biennially.

o Written safety material should be provided to all staff and students.

o Have an earthquake plan.

Guideline 6: Administrative

No program can be successful without formal planning and a proactive administration. The following administrative requirements are necessary for a community to be recognized in the TsunamiReady Program:

1. A tsunami warning plan must be in place and approved by the local governing body. This plan must address the following:

• Warning point procedures.

• EOC activation guidelines and procedures.

• Warning point and EOC personnel specification.

• Hazard zone map with evacuation routes.

• Procedures for canceling an emergency for those less-than-destructive tsunamis.

• Guidelines and procedures for activation of sirens, cable TV override, and/or local system activation in accordance with state Emergency Alert System (EAS) plans, and warning fan-out procedures, if necessary.

• Annual exercises.

2. Yearly visits or discussions with local NWS Forecast Office Warning Coordination Meteorologist or Tsunami Warning Center personnel must be conducted. This can include a visit to the NWS office, a phone discussion, or e-mail communication.

3. NWS officials will commit to visit accredited communities, at least every other year, to tour EOCs/Warning Points and meet with key officials.

Administration of the TsunamiReady Program

Oversight of the TsunamiReady program is accomplished within the NWS by the National StormReady Board (The Board). The Board is responsible for changes in community recognition guidelines. Proposed guideline changes shall be directed to the Board for action. The Board consists of the NWS Regional Warning Coordination Meteorologist (WCM) Program Leaders, the National WCM Program Manager, a Federal Emergency Management Agency (FEMA) representative, a National Emergency Management Association (NEMA) representative, and an International Association of Emergency Managers (IAEM) representative.

Oversight of the TsunamiReady program at the local level is provided by the appropriate Local StormReady board. The Local StormReady board has the authority to enhance TsunamiReady to fit regional situations. At a minimum, this board consists of:

• NWS Weather Forecast Office's Meteorologist-in-Charge

• NWS Weather Forecast Office's Warning Coordination Meteorologist

• State emergency service director or designee

• Local emergency management association president or designee

• Tsunami Warning Center's Geophysicist-in-Charge

• Tsunami Hazard Mitigation Program representative

The Local StormReady Board is responsible for all steps leading to the recognition of the TsunamiReady community. This includes implementing procedures for site verification visits and application review.

Benefits of the TsunamiReady Program

The following benefits of participation in the TsunamiReady Community program include:

• The community is more prepared for the tsunami hazard

• Regularly scheduled education forums increase public awareness of existing dangers

• Contact with experts (emergency managers, researchers, NWS personnel) is increased and likewise, enhanced

• Community readiness resource needs are identified

• Positioning to receive State and Federal funds is improved

• Core infrastructure to support other community concerns is enhanced

• The public is allowed the opportunity to see first-hand how their tax money is being spent in hazard programs

Conclusion

Through the TsunamiReady program, NOAA’s National Weather Service gives communities the skills and education needed to survive a tsunami before, during and

after the event. TsunamiReady helps community leaders and emergency managers strengthen their local tsunami operations. TsunamiReady communities are better prepared to save lives from the onslaught of a tsunami through better planning, education and awareness. Communities have fewer fatalities and property damage if they plan before a tsunami arrives. No community is tsunami proof, but TsunamiReady can help communities save lives.

References:

FEMA. 2004. Fact Sheet: Tsunamis.

Folger, Tim. 1994. “Waves of Destruction.” Discover Magazine. May. Pp. 69-70.

NOAA (National Oceanic & Atmospheric Administration). N/D. The National Tsunami Hazard Mitigation Program Brochure.

NTHMP (National Tsunami Hazard Mitigation Program). 2003. Frequently Asked Questions.

NWS. N/D. TsunamiReady; The Readiness Challenge.

Sidebar 2.1.1: Press Release; - NOAA'S National Weather Service Honors Washington Community for Earning "TsunamiReady" Recognition (from )

At a recognition ceremony, held during the Ocean Shores (Wash.) Sand Festival on Saturday June 30, 2001, the National Weather Service (NWS), an agency of the Commerce Department's National Oceanic and Atmospheric Administration (NOAA), honored officials representing both the city of Ocean Shores and Grays Harbor County for their efforts in simultaneously earning the nation's first "TsunamiReady" and "StormReady" designations for their communities.

During the ceremony, Scott Gudes, NOAA's acting administrator, said, "Today we are making history. We are honoring the State of Washington, its elected and appointed officials, for completing a process that enables them to better protect its citizens from severe weather and tsunamis. These communities have demonstrated a strong commitment to putting the infrastructure and systems in place that will save lives and protect property in the event of these damaging and hazardous events."

City and county officials received both "StormReady" and "TsunamiReady" road signs from NOAA officials. The road signs are posted to inform residents and travelers that this is a NWS recognized "StormReady and TsunamiReady" community. Many local and state representatives were also on hand to witness the unique ceremony and view the informational exhibits on the beach staffed by weather and disaster related agencies.

Vickie Nadolski, NWS Western Region director, emphasized the key safety message is awareness. "If there is an earthquake in or near a seaside community such as Ocean Shores, people do not understand the importance of moving to higher ground or inland immediately in case a tsunami occurs."

Nadolski pointed out local evacuation signs tell residents and visitors to seek higher ground after they feel an earthquake. She said the Pacific Northwest is prone to earthquakes. "We are here to help people understand if they live in or participate in recreational activities in this region, they must know how to protect themselves from Mother Nature's fury that can range from tsunamis to high wind and surf, flooding events and dense fog in coastal areas."

The recent Feb 28 Nisqually earthquake was recently named the state of Washington's costliest natural disaster, even when compared to the winter flooding of 1996. Officials have approved nearly $105 million to assist people whereas about $85 million in assistance was distributed following the winter flooding of 1996.

"When severe weather is headed our way, we encourage you to tune in to NOAA Weather Radio or local media for the latest reports," said Chris Hill, meteorologist in charge of the NWS forecast office in Seattle. "We want to have people know how to protect themselves from a variety of severe weather. During the 1990s, Washington experienced 19 Federally declared disasters and dozens more local disasters. When disasters occur, a "StormReady" or "TsunamiReady" community will be better prepared and will gain the most benefit for its citizens."

"StormReady" and "TsunamiReady" are voluntary preparedness programs providing communities with clear-cut advice on how to best use a grassroots approach and develop plans to handle local severe weather threats from floods, wind storms, or snow storms. "StormReady" and "TsunamiReady" will also strengthen a community's ability to receive and use severe weather watches and warnings from the NWS.

To receive the "StormReady" and "TsunamiReady" designation, this community had to be approved by an advisory board made up of local county emergency managers, representatives from Washington State Emergency Management and the National Weather Service.

The Sand Festival draws master sand castle sculpting teams and several thousand onlookers. One of the entries this year featured a tsunami wave and larger-than-life replica of the tsunami evacuation route.

For more information about the "StormReady" program, please visit . . Each NWS forecast office posts daily forecasts and severe weather warnings on their Web pages. Links to NWS offices across the country are available through . For more information on the TsunamiReady program, please see .

Sidebar 2.1.2: Recent TsunamiReady Communities

|Date |Community |State |

|06/30/2001 |Ocean Shores |Washington |

|01/10/2002 |Long Beach |Washington |

|01/18/2002 |Seward |Alaska |

|05/29/2002 |Crescent City |California |

|06/04/2002 |Quinault Indian Tribe |Washington |

|08/12/2002 |Cannon Beach |Oregon |

|09/09/2002 |Homer |Alaska |

|07/07/2003 |Sitka |Alaska |

|10/07/2003 |Kodiak City |Alaska |

|06/21/2004 |University of California Santa Barbara (UCSB) |California |

From

Sidebar 2.1.3: Tsunami Safety Advice

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from

Illustration 2.1.1: TsunamiReady Brochure Pages 1 and 2

[pic]

[pic]

From

Illustration 2.1.2: Hawaii Tsunami - Photograph courtesy of the Pacific Tsunami Museum, in Hilo, Hawaii, posted by the USGS ()

People run from an approaching tsunami in Hilo, Hawaii, on 1 April 1946; note the wave just left of the man's head in right center of image.

[pic]

[pic]Illustration 2.1.3: Tsunami Evacuation Sign - From the Washington State Department of Transportation ()

[pic] Illustration 2.1.4: Tsunami Evacuation Sign - From the Washington State Department of Transportation ()

Additional sources of information on tsunami readiness:

• Earthquakes, FEMA-159, August 1992, 169p.

• Guidance for Local Officials, National Tsunami Hazard Mitigation Program, 2001, 58p.

• Local Planning Guidance on Tsunami Response, California Office of Emergency Services, OES Earthquake Program, State of California, 195p.

• StormReady Organization and Operations Manual for further information on the National StormReady Board and program.

• Strategic Implementation Plan for Tsunami Mitigation Projects, NOAA Technical Memorandum, Pacific Marine Environmental Laboratory, NOAA, Dept. of Commerce.

• Tsunami Curriculum - K-6 Grades, Washington State Military Department, Emergency Management Division, 2000, 67p.

• Tsunami Curriculum - 7-12 Grades, Washington State Military Department, Emergency Management Division, 2000, 51p.

• West Coast/Alaska Tsunami Warning Center's web page. or

• TsunamiReady Organization and Operations Manual.

• NWS Pacific Tsunami Warning Center -

• 1997-1999 activities of the Tsunami Mitigation Subcommittee: a report to the Steering Committee, National Tsunami Hazard Mitigation Program.

• “How the Smart Family Survived a Tsunami” Childrens’ Book -

• State of Alaska TsunamiReady Annual Report (FY2003)

Discussion Questions

TsunamiReady – An Effective Tsunami Preparedness Program:

1. Identify the early efforts in tsunami public education and community preparedness.

2. What is the goal of the National Weather Service TsunamiReady program?

3. Name the three principal groups that collaborate in TsunamiReady to promote tsunami hazard readiness.

4. Identify the five guidelines used in the TsunamiReady Program.

5. Identify and discuss the two critical elements in the Communications and Coordination Center.

6. Discuss the actions involved in the Community Preparedness guideline.

7. Discuss possible obstacles communities might face in their drive to become TsunamiReady

Glossary of Terms

Pacific Rim - referring to countries and economies bordering the Pacific ocean, is an informal, flexible term which generally has been regarded as a reference to East Asia, Canada, and the United States. At a minimum, the Pacific Rim includes Canada, Japan, the People's Republic of China, Taiwan, and the United States. It may also include Australia, Brunei, Cambodia, Hong Kong/Macau, Indonesia, Laos, North Korea, South Korea, Malaysia, New Zealand, the Pacific Islands, the Philippines, Russia (or the Commonwealth of Independent States), Singapore, Thailand, and Vietnam. As an evolutionary term, usage sometimes includes Mexico, the countries of Central America, and the Pacific coast countries of South America. (Glossary/glossary-p.asp)

Tsunami - a series of waves generated by an undersea disturbance such as an earthquake.

StormReady - NWS designed StormReady to help communities better prepare for and mitigate effects of extreme weather-related events. StormReady also helps establish a commitment to creating an infrastructure and systems that will save lives and protect property. Receiving StormReady recognition does not mean that a community is storm proof, but StormReady communities will be better prepared when severe weather strikes.

TsunamiReady - an initiative that promotes tsunami hazard preparedness as an active collaboration among Federal, state and local emergency management agencies, the public, and the NWS tsunami warning system.

Suggested Out Of Class Exercises

1. Find out if your community is StormReady or Tsunami Ready. This can be done by accessing . If it is, interview your local manager about the difficulties they encountered in establishing StormReady in their jurisdiction. Find out if they plan to renew their status. If the community is not StormReady, discuss with the emergency manager the why the community is not storm ready, and find out what it would take to attain StormReady or TsunamiReady (if a Pacific coastal community) status.

2. Find out what disaster preparedness public education is conducted in your community. Check with local and state government agencies, as well as non-governmental agencies (i.e., the American Red Cross). Suggest to your local emergency manager an event that could be held or a publication that could be developed that would help members of the community prepare for a risk for which they are vulnerable.

3. Design a simple disaster preparedness tool that could be used in primary or secondary schools in your community. Discuss with your emergency manager the possibility of distributing the publication to the community’s schools.

4. Talk to a students in a local school about individual and family disaster preparedness.

5. Find out if your college or university is currently offering FEMA EMI courses. If not, meet with representatives from your school to see if such courses could be offered, and help to implement them.

6. Research the EMI Independent study courses online. Select one or more that you are interested in taking, and take the test for certification. Find out from your college or university if the course credits are transferable.

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